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- 4.1.Conceptual and Theoretical Framework
- 4.1.2.Understanding the impact of EU policies other than aid
- 4.1.3.Limitations of Conceptual Framework
4.Case StudiesBeyond the policy level which is covered in the first chapters, the following section introduces a tentative framework to assess EU policies' impact on MDGs at a methodological level: a matrix showing relevant interactions is proposed followed by a short assessment of EU Security Policy impact on development. The next two chapters present a more detailed assessment of impacts on MDG1 (hunger) and MDG 6 (fighting HIV/AIDS). Turning to an international cooperation instrument, the final chapter highlights the PCD potential of the recently approved Joint Africa-EU Strategy. This EU initiative to explore the possibility of assessing the impact and results of PCD has to be seen in connection with the OECD work on the elaboration of a new assessment methodology aiming at improving the development dimensions of policies and exploiting potential positive synergies between those policies and development efforts. 4.1.Conceptual and Theoretical Framework4.1.1.The Conceptual FrameworkThe EU Research Paper on the ''MDGs at Midpoint: where do we stand and where do we need to go?''268 is a starting point for developing a conceptual framework to assess PCD impact in developing countries. The approach stresses the importance of three clusters of policies, namely the global context, development assistance, and domestic policy, that are important for achieving MDGs. While understanding interactions between these three clusters is key to assessing progress on MDGs, the PCD focus is more specifically on the interactions between the development assistance policies and other policies of the EU as highlighted below (Fig.1) Figure 1: Key Policy Interactions and progress on MDGs
A further refinement to this model structures the approach to the case studies in a way that facilitates comparison. Three broad determining factors for food security and access to retroviral drugs were identified, as shown in Figure 2.
Figure 2: Key policy interactions for MDG1 (reducing hunger) and MDG 6 (fighting HIV/AIDS)
The various factors influencing progress on the two MDGs considered in the case studies have different weights depending on the local context. However, the types of policies that have an impact on the three determining factors are the same as those in the overall model: domestic and external (EU and international) policies, development and non-development policies. 4.1.2.Understanding the impact of EU policies other than aidA framework for assessing PCD- sensitivity in EU policy Such a framework should allow for systematic exploration of the effects, positive or negative, that EU policies other than aid might have on development, and more specifically on the achievement of the MDGs. This is at the heart of the impact assessment process which is used in EU policymaking270. While very often the emphasis is on the potential negative impact, the framework also encourages the identification of possible synergies, potential positive impacts on development, in addition to the core sector objective of the policies. The application of this framework by policymakers would help make the development case or ‘MDG-friendly case’ for proposed EU policies. This would allow specific policies to open more fully to dialogue with outside parties such as development specialists or the policy makers of partner country.
To be thorough in assessing PCD implications of EU policies, policymakers can focus specifically on the MDGs, and consider whether and how policies are likely to affect the partner countries’ ability to achieve each of the first seven MDGs271. The first step in such a process is to identify which of the 12 priority areas of policy might conceivably have an impact on the country’s ability to achieve the MDG in question. Conceptually the identification of potential effects can be proposed in line with the following matrix: Table 1: Potential effects of EU policies on developing countries’ efforts to achieve the MDGs272
The indications in the two columns for MDG1 and MDG6 in this table relate to the analysis carried out for the two case studies covered in the following chapters. A rapid review of the potential relationships between the MDGs and the 12 PCD priority areas allows us to sketch some additional indications in the other five columns (MDGs 2-5 and 7): for example, EU policy on Climate Change is likely to have some impact on the achievement of all the MDGs as climate change affects everyone. EU Information Society policy could potentially improve access to information in any sector which can be vital for the achievement of all MDGs, but the impact is likely to be less direct or less strong than, for instance, with Security policy. EU Migration policy might also encourage the drain of skilled personnel away from developing countries where they are needed to achieve certain MDGs. By way of illustration, EU Security policy is further presented below as an example of how the PCD sensitivity framework might work. The markings proposed in the matrix are at this stage very crude indications of the relevance and strength of the expected inter-linkages. They are based on the 2007 EU report on PCD. While those indications need to be thoroughly reviewed, through specific studies on the various links proposed, the core of the approach also needs to be further enhanced. Such work is currently undertaken in the context of the OECD273 and will form the basis of future EU efforts in this field. The example of EU Security policy European Union policy in the area of security has in the past few years been guided by the European Security Strategy (ESS) of 2003 supplemented by the December 2008 Report on its implementation274. The policy thus outlined is essentially multi-lateral in approach, which emphasises the need for partnerships and recognises that the EU has a global role in contributing to global security and supporting multilateral frameworks such as the UN and the OSCE. It underlines the need to tackle global challenges such as energy security and climate change and a series of specific threats such as WMD275, terrorism and organised crime. It also explicitly refers to the development and security nexus, and quotes the 2005 European Consensus on Development’s reference to the close linkage between the two policy areas and recognises the need for coherent approaches. The ESS takes into account areas of specific importance for achieving some of the MDGs. Poverty reduction (MDG1) is a clear concern, as is the empowerment of women (MDG3) and public health (MDGs 4, 5 & 6) including pandemics such as HIV/AIDS (MDG6). More specific links to child mortality (MDG4) and maternal health (MDG5) are not made, but the link between these and security does not need spelling out. Various issues which relate to environmental sustainability (MDG7) such as climate change, landmines and tensions over water and raw materials extraction are also mentioned. Universal primary education (MDG2) is not mentioned specifically, but the impact of conflict on infrastructure and state fragility clearly links through to the provision of education facilities. This quick overview shows that PCD elements have been considered in the formulation and reporting of the policy.
Experience from the field work conducted on the case studies on MDG1 and MDG6 shows that it is generally possible to identify the key factors in each of the policy clusters considered (global context, development assistance, domestic policy) but that the weight and the relative importance of the three clusters in relation to the impact in developing countries is difficult to gauge. This is a methodological difficulty, an element of uncertainty, which will remain central to PCD assessment in the future276. The case studies nevertheless provide interesting evidence of the inter-relationships between policies. At the same time they point towards the need for more detailed research and investigation that would help policy makers and programme administrators to formulate and implement policies in different areas that are supportive of development.
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